A Stakeholder Engagement Approach to Enhancing Transport Network Resilience in Australia

A Sustainable Built Environment National Research Centre (SBEnrc) Industry Report

Final Industry Report, Project 1.35 SBEnrc Core Partners

Project Steering Group SBEnrc Project Affiliates Professor Keith Hampson, CEO SBEnrc Professor Peter Newman, Curtin University Professor Peter Tatham, Griffith University Dr Charlie Hargroves, Curtin University Joanna Robinson and Jennifer Nosovich, Qld Department of Transport & Main Roads Flori Mihai, Main Roads Western Australia Research Team Program Leader: Sue Lannin and Peter Westgate, WA Department Professor Peter Newman, Curtin University of Transport Project Leaders: Chris Harrison, Stan Robb and Rebecca Professor Peter Tatham, Griffith University Monckton, NSW Roads and Maritime Services Dr Karlson ‘Charlie’ Hargroves, Curtin University Hanna Lucas, Chartered Institute of Logistics & Research Team: Transport (Australia) Professor Sherif Mohamed, Griffith University Associate Professor Matthew Burke, Griffith Ian King, WA Road Transport Association University Phil Kuhne, WA State Emergency Management Dr Young Yu, Griffith University Committee Georgia Grant and Daniel Conley, Curtin University Michelle Goyen, Toll Plc Candia Bruce, Working On It Preface The Sustainable Built Environment National Research Centre (SBEnrc) and its predecessor, the Cooperative Research Centre (CRC) for Construction Innovation, is committed to making a strong contribution to innovation across the Australian built environment sector. We are dedicated to working collaboratively with industry and government to develop and disseminate practical research outcomes that improve industry practice and enhance our nation’s competitiveness. We encourage you to draw on the results of this and our many other applied research projects to deliver tangible outcomes for your operations and look forward to opportunities to work together in the future.

John V McCarthy AO Dr Keith Hampson Chair, Sustainable Built Environment CEO, Sustainable Built Environment National Research Centre (SBEnrc) National Research Centre (SBEnrc)

2 SBEnrc Industry Report | TRANSPORT NETWORK RESILIENCE Contents A Stakeholder Engagement Approach to Enhancing Transport Network Resilience �� 4

Introduction 4

Stakeholder Themes to Enhance Transport Network Resilience to Natural Disasters �� 6

A Well Informed Community 6 Enhancing Infrastructure Disaster Readiness and Betterment 9 Disaster Re-purposing of Facilities and Transport Infrastructure 11 Whole-of-Community Resilience 12 The Use of Big Data and New Technologies 14 Streamlining Governance Structures 16 Enhancing Mulit-Agency Cooperation 17

References �� 19 Synopsis Acknowledgments This report presents the key findings from an This report has been produced as part of the extensive stakeholder engagement process to ongoing program of work of the Sustainable Built identify ways to improve the resilience of the Environment National Research Centre (SBEnrc). transport network prior to, during and in the The project was supported by the SBEnrc Core aftermath of natural disasters, thereby reducing Members, Main Roads Western Australia (and the impacts of such events on communities and the WA Department of Transport), Queensland businesses. Department of Transport and Main Roads, and NSW Roads and Maritime Services. The project included stakeholder workshops in Townsville QLD, Broome WA and Grafton NSW, The research was advised by the WA State as well as close engagement with local and state Emergency Management Committee, Toll Plc, WA government departments, and local and state Road Transport Association, and the Chartered emergency management committees. Institute of Logistics and Transport (Australia). The researchers also wish to thank Townsville Each workshop involved stakeholders engaged City Council, Shire of Broome and Clarence Valley in disaster preparedness, response and recovery, Council for their invaluable support for the project including representatives of the emergency workshops services, government agencies, community This report is dedicated to the memory of Candia groups, infrastructure providers, media and the Bruce whose passion for sustainability and expert business community. facilitation of the stakeholder workshops provided a strong basis for our work. She will be missed.

Citation: SBEnrc (2016) A Stakeholder Engagement Approach to Enhancing Transport Network Resilience in Australia: A Sustainable Built Environment National Research Centre (SBEnrc) Industry Report, Curtin University, Perth and Griffith University, Brisbane, Australia.

TRANSPORT NETWORK RESILIENCE | SBEnrc Industry Report 3 A Stakeholder Engagement Approach to Enhancing Transport Network Resilience Introduction The world is coming to grips with the reality a vision and seven Action Areas that provide that mankind’s emissions of greenhouse gases valuable leverage points to achieve a more resilient are likely to lead to an increase in the average road and transport network. To this end the global temperature. Hence many are now asking collective vision is as follows: serious questions about what this will mean for ‘In the face of natural disasters our cities and the severity and frequency of bushfires, flooding, towns will be well prepared and supported to and mega-storms and, in particular, their impact activate an effective response that harnesses on road and transport infrastructures. Indeed, it leading edge technologies and practices to has already become clear that it will be necessary minimise disruption to transport networks to identify and implement improved strategies to and achieves a swift return to normal for our increase the resilience of these networks, but at communities and businesses.’ the same time these emerging strategies must be The seven Action Areas are: informed through dialogue with those living and 1. A well informed and prepared community working in the affected areas and appropriately supported by all levels of government. A key element in natural disaster readiness, response and recovery is a prepared community In response to calls from the state government that is well informed and with strong social partners, this project sought to inform the structures in place. Such preparation by the development of such strategies through direct community will reduce the pressure on the input from stakeholders in a number of regions road and transport networks during and in the of Australia that are frequently affected by natural aftermath of a disaster. It could include information disasters. Using the ‘Collective Social Learning’1 sessions on key issues such as setting up method as the basis for stakeholder workshops household disaster kits and stores, increasing the in Townsville (QLD), Broome (WA) and Grafton disaster readiness of homes and how to help the (NSW), this report, and its associated short film community following a disaster. A leading example available at www.sbenrc.com.au, outlines both of this is ‘Cyclone Sunday’ organised by the Townsville City Council which takes place at the start of cyclone season each year. 2. The assessment of the natural disaster readiness of infrastructure and consideration of betterment options A key part of mitigating the damage from natural disasters is to identify in advance the infrastructure and facilities that are perceived to have low disaster resilience and to explore options for their betterment. Once such

4 SBEnrc Industry Report | TRANSPORT NETWORK RESILIENCE options have been identified, together with an of governance structures that affect the provision understanding of the impacts of the failure of of support for recovery, rebuilding and betterment that particular infrastructure/facility, the costs and works. There is a clear need to streamline benefits associated with remedial action can be existing regulations and requirements and considered, with priority given to the assessment remove unnecessary impediments, along with of road and transport infrastructure as well as improvements to current funding structures related those assets that are critical to the short term to funding rules, requirements and eligibility. recovery effort. 6. The use of data to inform a rapid response 3. A process to undertake ‘Disaster Re- to transport network interruption purposing’ at a city infrastructure level Rather than manually surveying the extent of In response to calls for a greater number and damage to the transport network following range of disaster response facilities, there was an event such as a cyclone or flood - which strong interest from the workshop participants for may take, at minimum, several hours - there is an investigation into the potential for greater use significant potential to shorten this process by of existing facilities and infrastructure across a accessing data collected during and shortly after city or town to provide disaster recovery support. the event. Such data could be collected using This would involve a stakeholder engagement sensors (e.g. tilt sensors on electricity poles, light process to identify recovery needs, and link these poles and large trees that are located near critical to existing infrastructure and facilities that could be transport nodes), as well as using reconnaissance temporarily re-purposed. Examples might include drones or fixed cameras to photograph key the use of highways as temporary airstrips and the transport network nodes. This input could then be employment of alternative logistics options such integrated with a range of existing baseline data to as shipping, air, and rail. identify interruptions to critical-route intersections 4. Strategic planning to increase whole-of- and/or transport routes that would be prioritised community resilience to natural disasters for emergency response vehicles. Further, the data In a similar way to the proposed betterment could also be used to route general emergency investment, strategic planning can significantly vehicles around obstacles in the aftermath of a reduce the impact and disruption to the road and disaster event. transport network in the case of a disaster. In 7. Multi-agency coordination and particular, sophisticated modelling tools can now communications strategies and practices be used to identify ways to enhance the continuity A key part of an effective response is the of critical services, such as access to goods and coordination and communication between commodities, including fuel and food, in the event disaster response agencies. There is a clear that roads are cut off. Such an approach would need to investigate options to enhance multi- not only reduce disruption caused by disasters to agency coordination and to strengthen multi- the community, but also assist in the continuity of agency communication strategies. Sophisticated business activities. modelling tools exist which can be used to identify 5. Streamlining governance structures to leverage points in multi-agency interactions that support disaster recovery can enhance the resilience of the overall system, A key element of the effective resilience of and these should be employed more broadly as a communities to natural disasters is the existence matter of course.

TRANSPORT NETWORK RESILIENCE | SBEnrc Industry Report 5 Stakeholder Themes to Enhance Transport Network Resilience to Natural Disasters 1. A Well Informed Community A key element in natural disaster readiness, Community Partnership projects were introduced response and recovery is an informed and by the Australian Attorney-General’s Department prepared community. This theme calls for a focus with the intention of engaging with culturally and on options to support the community through the linguistically diverse Australians, and increasing provision of behaviour change programs (such as their awareness and resilience to natural disasters. those related to setting up disaster kits and stores, Through such projects, societal elements which or to preparing outdoor areas to be cyclone or may cause complications in the case of a disaster flood ready), capacity building sessions (focusing as a result of language or cultural barriers are on increasing the disaster readiness of homes, exposed and are thus able to be addressed. It is ways to increase personal safety during disaster argued that the overall resilience of not only the events, and options for volunteer responders individuals involved in these programs, but the to assist with recovery efforts), community entire community is continually increased through events (such as ‘Cyclone Sunday’ currently run such an example of greater knowledge sharing in Townsville to inform residents, along with and good will.3 community practice drills) and events (such as As outlined in the 2015 ‘Queensland State creating a ‘Flood Ready Streets Program’) where Disaster Management Plan’, all levels of relationships are fostered at a street level to government bear the responsibility to provide increase the resilience to disasters through greater ‘activities and products such as publications, sharing and goodwill. multimedia information packages, community information events and media releases’ The Australian ‘National Strategy for Disaster in conjunction with other agencies and Resilience’2 underlines the importance of a organisations.4 This ensures the community well prepared community, stating ‘Australian receives information across a range of platforms communities are varied in their composition and and programs. their level of exposure to disaster risk’ and within these communities ‘certain members are more Leading efforts in this area include: vulnerable than others and may need tailored Queensland advice’. According to the Strategy, factors which • Since 2008, the Townsville City Council has can affect a community’s vulnerability to a natural organised ‘Cyclone Sunday’, a free annual disaster include socio-economic status, age community event to assist residents with profile and anguage proficiency, as well as the cyclone preparedness and provide expert location, density and mobility of the community. advice. Some 40 different agencies and Characteristics of resilient communities include groups participate, along with food stalls and a focus on the importance of social cohesion, activities for families. At the event, residents mutual interest and self-help groups, and social can have important personal documents support systems. scanned to ensure their safety and accessibility Between 2006 and 2010, eight Jurisdictional in case of a cyclone.

6 SBEnrc Industry Report | TRANSPORT NETWORK RESILIENCE • The Queensland town of Theodore was of back-up power generation. This investment flooded three times in the space of 12 months paid off when Cyclone Yasi hit in the same and was the first Queensland town to undergo geographic area in 2011 and left just two total evacuation. The resilient nature of the farms experiencing difficulties with their back- town has been attributed to the policy of up systems. keeping the response local, and helping to Western Australia create and maintain a strong community spirit. This has been achieved through • As part of the Western Australian Natural initiatives such as the provision of a website Disaster Resilience Program, the town of to allow the community to access information Bassendean in Western Australia marks its on the disaster. After each flood, the town light poles with a 100 year flood marker to and its surrounding districts re-established keep the danger of flooding present in the the community and economy in less than minds of residents. In addition, affected three months. The former Queensland residents are provided ‘hot kits’, supported by Reconstruction Authority Chair Major General information signage and press articles. Mick Slater was quoted as saying ‘Self- • The City of Bunbury, in Western Australia’s starting Theodorians always have two or South West, realised that there was a high three options to solve a problem, showing the level of complacency amongst residents in Reconstruction Authority and the government relation to their understanding of disaster how the town can help rather than waiting to risk. As a result, in 2010 the Council initiated be shown.’5 a community wide program to heighten • In the aftermath of Cyclone Larry in 2006, local awareness of the reality that in the event of a dairy farmers were without power for 22 days natural disaster they must be capable of being and this prompted investment in greater levels self-sufficient for up to 72 hours.6

Image: Example of flooding in Grafton (Source: Complimenets of Clarance Valley Council)

TRANSPORT NETWORK RESILIENCE | SBEnrc Industry Report 7 • Following the 2009 Victorian bushfires, the WA led to an improved warning response during a Government created the ‘Principal’s Guide to major weather event in 2010.8 Bushfires’ to inform schools about procedures • In 2006 a Flood Education Strategy was to be followed in the event of a bushfire. developed for Maitland. Prior to this program, Importantly, this advice was not just left on the surveys found that some 70% of the shelf, rather the Shire of Mundaring’s School community showed little or no concern about Principals and Emergency Service Committee flooding.9 The strategy includes collaboration conducted bushfire exercises in 2014 to with a range of representatives from various ensure that there was a clear understanding of local community sectors with the resultant the processes to be followed and actions to be initiatives centred on raising awareness of undertaken in the case of a bushfire.7 flooding in the area. An example of this is the New South Wales ‘Flood Walk’ digital application, shown below, • The poor response to evacuation warnings in developed by the NSW Government to provide the 2005 floods in Eugowra, led to the creation a self-guided walk of an area to consider the of an emergency planning committee. This flooding implications and history. committee undertook a range of actions that

8 SBEnrc Industry Report | TRANSPORT NETWORK RESILIENCE 2. Enhancing Infrastructure Disaster Readiness and Betterment

A key approach to mitigating the damage from General’s Department as ‘the restoration or natural disasters is to identify infrastructure and replacement of the asset to a more disaster- facilities that have low readiness, and to explore resilient standard than its pre-disaster standard.’11 options for their betterment both before and However according to the roundtable report after such events. This theme calls for a focus on mentioned above, each year, ‘an estimated $560 designing a process to investigate the ‘Disaster million is spent on post disaster relief and recovery Readiness’ of roads and transport infrastructure, by the Australian Government compared with an and to identify opportunities for betterment. estimated consistent annual expenditure of $50 Once identified, the process would consider million on pre-disaster resilience: a ratio of more the costs and benefits associated with remedial than $10 post-disaster for every $1 spent pre- actions, with priority given to assessing disaster.’ infrastructure and assets critical to the short term The findings from a Bureau of Transport recovery effort, such as primary transport routes. Economics study in 2002 stated that, ‘flood In doing so, the potential economic and social mitigation can provide a 3:1 return on investment impacts of the failing of critical infrastructure through the avoidance of response and recovery would clearly need to be considered. The costs’.12 This suggests that there is a critical outcome would be the identification of specific need to re-assess current approaches to the infrastructure and/or assets that require remedial identification of betterment opportunities that will or betterment action. The investigation could also deliver long term cost savings and a lower level of consider the potential for recommending updates interruption to communities in the aftermath of a to the associated design codes and performance disaster. standards. As an example, a study into the height of the According to a recent report commissioned by Warragamba Dam wall in NSW found that raising the Australian Business Roundtable for Disaster it by 23 metres would cost some $400 million. Resilience and Safer Communities: ‘In 2012 alone, However, it was anticipated that it would result the total economic cost of natural disasters in in a reduction in the present value of flood costs Australia was estimated to have exceeded $6 between 2013 and 2050 from $4.1 billion to $1.1 billion. Further, these costs are expected to double billion, a return on investment of some 6:1.13 by 2030 and to rise to an average of $23 billion The following provides a snapshot of leading per year by 2050, even without any consideration efforts in this area: of the potential impact of climate change’.10 • Western Australia: The need for betterment This tripling of the costs clearly presents significant was highlighted in a 2012 report from the economic risk to communities, businesses and WA Government which stated that civil governments across Australia. Consideration infrastructure will be ‘required to adapt to of such risks strongly supports the argument impacts such as higher temperatures, reduced for investing in infrastructure so that it is more rainfall, larger storm surges and more frequent disaster-resilient and, hence, will reduce these extreme weather events’.14 Supporting such ballooning costs. Such investment is referred to activities the WA Government has created a as ‘betterment’ and is defined by the Attorney- ‘Natural Disaster Resilience Program’ which

TRANSPORT NETWORK RESILIENCE | SBEnrc Industry Report 9 provides grants to aid those areas of the State • The Gayndah-Mundubbera road which is which are prone to natural disasters and which vital to the North Burnett region in central can be used as a testing ground for wider Queensland and which, during the 2011 and adoption. 2013 disasters, experienced damage costing over $8.5 million. This led to a betterment • Victoria: The City of Greater Geelong in Victoria project to relocate and raise the roads by included the ‘Betterment of an Essential Public some 11 metres at a cost of $6.1 million, as Asset’ as part of their municipal emergency shown below. As a result, the damage from management plan in 2014. Essential public Tropical Cyclone Marcia in 2015 was estimated assets are deemed to include ‘roads and to be some $4.6 million less than anticipated. road infrastructure’. The approved betterment Furthermore, the road was re-opened proposals will be funded on a one third basis three hours after the flood waters receded, between the Commonwealth, State and local compared with the four months it took in 2013. councils.15 • The Grantleigh Pheasant Creek Road near • Queensland: In 2010, the Tablelands Regional Rockhampton provides access to a farming Council decided to replace a flood prone community off the Capricorn Highway. During culvert at Figtree Close with a single span the 2013 floods a gravel culvert was washed bridge to allow greater transport access by out, leading to a 60km diversion to reach the residents in times of flooding.16 In 2011, Highway. The Banana Shire Council decided the Bruce Highway Upgrade strategy was to invest in a betterment project to construct released that included funding to replace a raised concrete floodway at a cost of bridges to ‘improve flood immunity’ along $104,500. As a result, in 2015 there was no with making stretches of road more flood damage to the floodway from the Category resilient. In response to the series of natural 5 Tropical Cyclone Marcia, leading to an disasters in 2010/2011 the Queensland estimated saving of $55,000. Reconstruction Authority was created to monitor and coordinate the Government’s program of reconstruction and recovery with the aim to strengthen the ‘capacity to prepare for, withstand, respond to and recover from disasters’.17

In the 6 month period from November 2010 to April 2011, Queensland was subject to extensive flooding which resulted in significant loss of life and, according to the Chief Executive Officer of the Queensland Reconstruction Authority, required the evacuation of more than 70 towns and caused in the order of US$15 billion in damages and losses.18 This has resulted in a number of road related betterment projects in Queensland such as: Gayndah-Mundubbera Road Betterment Project

10 SBEnrc Industry Report | TRANSPORT NETWORK RESILIENCE 3. Disaster Re-purposing of Facilities and Transport Infrastructure

In response to the need for a greater level of • New South Wales: In 2015, the NSW disaster response facilities, this theme calls for a Government incorporated an airstrip in the focus on ways to harness existing facilities and $4.7 million upgrade to the Silver City Highway infrastructure across a city or town in order to at Shannon’s Creek. In the event of a natural provide disaster recovery support. disaster where supply routes are damaged or The first stage would focus on a stakeholder led blocked, the ability for aircraft carrying supplies process to identify recovery needs, and then to land or for the Royal Flying Doctor’s Service link these to potential infrastructure and facilities to use the facility for medical emergencies, is that could be temporarily re-purposed to offer likely to make life-saving differences for the recovery centres, emergency operations centres, area’s residents.20 accommodation shelters, temporary freight transport parking areas, energy supply points, • Queensland: As part of the 2003 ‘Queensland warehouses, access to cash, medical services, Resupply Guidelines’ there is a requirement support for pets and livestock, and wellbeing for open spaces near homesteads to provide services. helicopter landing points in case of disaster or emergency.21 Furthermore, the Queensland Transport related actions would include Government, in conjunction with the United consideration of the re-purposing of highways Arab Emirates, is investing $60 million into as airstrips, and the re-purposing of alternative the construction of 10 Cyclone Shelters logistics options such as shipping, air and rail. to be located in high risk areas along the The second stage, which would again be northern coast.22 Built on school grounds stakeholder led, would result in the development and community property, the shelters will of a re-purposing action plan for a city. This provide new facilities for schools to use that would include the process to re-purpose facilities are then re-purposed with providing safe and infrastructure, the allocation and location of shelter to those unable to find alternative supply caches to support re-purposed facilities, accommodation after being forced to evacuate the allocation of emergency car parks to assist their homes in the case of a disaster. in re-purposing (at, for instance, potential supply cache locations), as well as the provision of • Western Australia: The WA ‘Natural Disaster mobile recovery services, especially to isolated Resilience Program’ has recently supported communities. a number of projects that include elements of Such an approach would be very much in line disaster re-purposing, such as the upgrading with Australia’s ‘National Strategy for Disaster of the Nannup Recreation Centre (in South Resilience’, which promotes the use of existing West WA) to become a recovery centre in an community structures and networks to enhance event of a disaster. This re-purposing included disaster resilience.19 Indeed, some excellent re- the installation of a water tank and pump, an purposing is already taking place at a State level, electricity generator, a photovoltaic power as the following examples demonstrate: generation system and additional phone lines.

TRANSPORT NETWORK RESILIENCE | SBEnrc Industry Report 11 4. Whole-of-community Resilience

The response to natural disasters involves a number of complex tasks that can be informed by prior strategic (as well as tactical) planning. This theme calls for a focus on stakeholder led processes to develop strategic approaches to building the whole-of-community resilience to natural disasters. The investigation would consider strategic imperatives such as community evacuation plans (for residents and animals), with specific transport routes and staging areas that are clearly delineated and communicated. The investigation would also include ways to ensure the continuity of critical services (such as transport, electricity, water, sewerage and fuel) and the continuity of business activities (along with ensuring that businesses have a clear role in recovery activities). Additional themes could include the harnessing of data and the use of sophisticated digital modelling tools that can be used to identify ways to enhance the continuity • In 2009, a project under the Australian of critical services, such as access to goods and National Emergency Management Projects commodities including fuel and food in the event Grants Program developed a training program that road access is cut. for emergency management volunteer There are multiple federal and state plans and leadership. The program was developed to reports which contain policies and principles that train volunteers in emergency response and are consistent with this theme and which provide recovery organisation. This program has valuable guidance for a focus on this area. These been conducted across Australia (Albury, MT include: Gambier, Gold Coast, Perth, Darwin, Hobart and Mt Macedon) and across volunteering Australian Government sectors, including fire agencies, State • The ‘Critical Infrastructure Resilience Emergency Services, Red Cross, Surf Life Strategy’23 seeks to support ‘effective Saving Australia and Anglicare. understanding and management of strategic issues’. This strategy discusses the strong Queensland link between resilience of infrastructure and • The ‘Queensland State Disaster Management the resilience of communities affected by a Plan’ describes the need for ‘Developing disaster, arguing that critical infrastructure awareness in communities of the nature and provides resources, expertise and essential potential impact of hazards’ and ensuring the services which communities rely upon during community understands their role in supporting and after a disaster event. and contributing to disaster management.

12 SBEnrc Industry Report | TRANSPORT NETWORK RESILIENCE This includes the need to ensure that the by a dedicated disaster website, with community understands the delivery methods social media links, and available in multiple and necessary responses to emergency languages.25 warnings, where evacuation routes are and where to obtain local information during the Western Australia disaster, whether this is from radio, television • As part of the ‘Natural Disaster Resilience or a notice board.24 Program 2014-2015’ the Chamber of Commerce and Industry Western Australia has • The Queensland ‘Storm Tide Evacuation developed a program on ‘Regional Business Guide’ was created through a local Resilience’, which aims to increase local consultation process in 2009-10. The guide business community awareness of potential provides information on designated evacuation risks, including education on how natural zones, routes and road capacity, timeframes hazards may impact businesses, and how to for evacuation, recommendations for mitigation complete risk assessments and develop risk work and online mapping. The guide was management procedures and plans. distributed to at risk areas and was supported

As part of this SBEnrc research project, researchers from Griffith University led by Associate Professor Matthew Burke developed a tool to model the supply of commodities after a disaster to identify key leverage points. The model draws on data related to demand, location, transport modes and the natural disaster risk to achieve a holistic view of where vulnerabilities may be in a logistics system. This research is described in greater detail in the complimentary report on this topic avaliabe on the SBEnrc Website (See Project 1.35).

Visit the SBEnrc YouTube channel for a short film on this project

TRANSPORT NETWORK RESILIENCE | SBEnrc Industry Report 13 5. The Use of Data and New Technologies

This theme calls for a focus on the use of data coordinate responses. to inform a rapid response to transport network • Development of context-aware and user- interruptions. Rather than manually surveying specific information delivery systems that the extent of damage to the transport network could be deployed during disasters to supply following a cyclone or flooding event – an activity accurate information to the local population. which may take, at minimum, several hours – • An investigation into new methods to this theme would investigate the potential to compress, transmit and query data from significantly shorten this process by accessing sensor networks. data collected during and shortly after the event from various sources. • An investigation into resilient networks, social For example, data could be collected using media mining and information dissemination sensors (such as tilt sensors on electricity poles, during disasters. light poles and large trees that are located near • Development of smartphone-based ad hoc critical transport nodes), through the use of both emergency networks that can evolve as a fixed cameras on key transport network nodes, as disaster unfolds. well as reconnaissance drones, as shown in the image over page, referred to as ‘Remotely Piloted The need for such a focus is demonstrated Aircraft Systems’ and possibly social media through the development of the ‘Australian Public streams. Service Big Data Strategy’ that highlights the government’s responsibility to realise the value of The input from these various sources would then such data and information.27 be integrated with a range of data that is currently accessible in order to identify interruptions to The Australia Research Centre for Aerospace critical-route intersections and/or transport routes Automation (ARCAA) has already begun research that would be prioritised for damage response into the use of drones in the aftermath of a crews. Furthermore, the data could also be used disaster as part of the first response effort. to route general emergency vehicles around As team leader Professor Duncan Campbell said, obstacles shortly after disaster events, as well as ‘If we could use unmanned aircraft as multiple helping to ensure that regular commercial and eyes in the sky and detect people that are in private traffic avoids the affected areas. trouble – that way the manned assets can come in This is an area of growing global interest and target their response.’28 with the National Science Foundation in the Further to data collection from emerging sensors USA collaborating with Japan’s Science and and drone technology, there is also great Technology Agency to link American and potential for social media to be used as both a Japanese universities to undertake a number of communication platform and a data source. projects related to the integration of data and disaster response, including:26 While there are clear concerns about how such • Development of computer platforms for data can be assessed and verified, there are decision makers to analyse incoming data and already a number of examples of social media application to disaster response, including:

14 SBEnrc Industry Report | TRANSPORT NETWORK RESILIENCE • Western Australia: A study by the WA to distribute data to the right places. A number of Government suggests that the use of social efforts considering the challenges in this area. media can be as effective as public information These include: and community warning tools given their ability • Australian Government: A new national to reach target audiences directly, interactively emergency warning system was and instantly in the case of emergencies.29 commissioned in 2012 that enables voice and • Queensland: After the Queensland floods in text messages to be sent to phones within a December 2010 when three-quarters of the danger zone.32 By 2015, the system had been state of Queensland was declared a ‘disaster used to send over 153,000 voice messages zone’, social media was used to organise over and over 400,000 SMS messages. 55,000 volunteers.30 • Western Australia: Following a review of • Victoria: A research collaboration led by concerns over the use of SMS messages for the University of Melbourne has developed disaster information that looked at timing, technologies which can be employed in pre- availability, and accuracy, the WA Government disaster planning (simulation and optimisation developed an emergency alert system. As with models) and as a real time information source its national equivalent, this web-based system for those dealing with natural disasters.31 sends SMS text and voice messages based on areas at risk. It can achieve this at a rate of However, accessing data is only part of the nearly 500 SMS messages a second. solution, as there needs to be networks in place

TRANSPORT NETWORK RESILIENCE | SBEnrc Industry Report 15 6. Streamlining Governance Structures

A key element to achieving community resilience • Australian Government: In 2009 the Council of to natural disasters is the efficiency and Australian Governments (COAG) created the effectiveness of governance structures that are ‘National Emergency Management Committee’ designed to provide support for preparatory, (NEMC) as part of a whole-of-nation resilience recovery, rebuilding and betterment works. approach to disaster management. The NEMC aims to strengthen and coordinate the link This theme calls for a focus on two specific between government and community, and areas: firstly, an investigation into opportunities to allocates $3.6 million to projects related to pre- streamline existing regulations and requirements, disaster resilience and preparation.33 and to remove unnecessary impediments to the delivery of the preparation and response • New South Wales: During the 2009 Far West activities; and secondly, an investigation into the Floods, the New South Wales Government opportunities to amend funding structures. provided an overwhelmed local government with an experienced State Government This would focus on funding rules and recovery expert to provide consultation on requirements, eligibility, access to funding, controls important strategic decision-making. This over the use of funding, as well as exploring the contribution led to a council which was much potential for social impact bonds. A key element better prepared to respond to the floods the of this project would be to inform decision making following year. in these key areas through community stakeholder • Queensland: The ‘Queensland State Disaster interaction with decision makers. Management Plan’ nominates the lead agency Natural disaster events can result in major damage in the case of each disaster event. The lead to infrastructure and this clearly places a financial agency is responsible for communication strain on local and state governments, although to the Queensland Premier and associated this is mitigated by support from the Federal commonwealth agencies, including the Prime Government. For example, the Natural Disaster Minister. Section 4A of the plan specifies that Relief and Recovery Arrangements, administered the responsibility primarily falls upon the local by the Attorney-General’s Department on behalf of governments for the management of disaster the Australian Government, can reimburse up to events in their local area, with the necessary 75% of reconstruction costs in the wake of natural resources and support to be received from disasters. District and State levels.34

This contribution is evident through the • Western Australia: The Western Australian government’s $7.5 billion assistance to the Government ‘State Emergency Preparedness recovery projects of Queensland’s 2011-2013 Report’ in 2012 addresses the need for disasters. effective funding arrangements for relief and recovery. The Auditor General of Western Whilst progress has been made in this area, Australia described the process for receiving as indicated below, the clear perception of the funding as ‘Generally made in a timely workshop participants was that more can be done manner to eligible recipients and for eligible using a collaborative approach. purposes’.35

16 SBEnrc Industry Report | TRANSPORT NETWORK RESILIENCE 7. Enhancing Multi-Agency Cooperation

One of the keys to a strong response is the applications; and the identification of specific coordination and communication between disaster communication needs and audiences to match response agencies. This theme calls for further to appropriate communications platforms, research and implementation in two areas: technologies and message.

1. Investigating options to enhance multi- There are multiple federal and state government agency coordination through a focus on: the reports that support this necessity to improve clarification of roles and responsibilities; the multi-agency cooperation, which include: development of inter-agency structures and standard operation procedures; undertaking Australian Government succession planning and capacity building for • In 2003, the Trusted Information Sharing staff; the assignment of greater responsibility to Network (TISN) was developed by the local actors; and the potential for equipment; Australian Government and, coordinated by facilities and staff sharing. the Critical Infrastructure Advisory Council, 2. Investigating multi-agency communication it provides a mechanism for businesses and strategies through the development of: governments to share information. The TISN standard protocols for communication consists of sector groups including banking (including frequencies, technology types, and finance, communications, energy, food, and conversation protocols); a strategic health, transport and water services, along approach to the accurate and timely sharing with a resilience expert advisory group.36 of information; investigating the potential to harness social media and smart phone

TRANSPORT NETWORK RESILIENCE | SBEnrc Industry Report 17 • The Australian Government ‘Critical including Perth’s Avon Valley fires of 2013. Infrastructure Resilience Strategy’ calls for ‘effective understanding and management Queensland of strategic issues’, and emphasises the • The Queensland Government has allocated importance of multi-agency cooperation.37 a specific task force for coordinating public Furthermore, the ‘National Strategy for information in a crisis, known as the ‘Crisis Disaster Resilience’ states that, ‘the resilience- Communication Network’, and argues that based approach is not solely the domain of the network ‘provides a mechanism to assist emergency management agencies rather it is agencies to coordinate their public information a shared responsibility between governments, and communication activities, without communities, business and individuals.’38 impeding, duplicating or complicating their work’.40 • Importantly, this latter report was careful to point out that the concept of shared As part of this SBEnrc research project, responsibility does not mean equal researchers from Griffith University, led by responsibility, and that there are some areas in Professor Sherif Mohamed, have demonstrated which the States should take on a greater role. the use of the Functional Resonance Analysis Method (FRAM) to model the interactions between Western Australia multiple agencies and stakeholders to identify • The idea of ‘shared responsibility’ is features leverage points to improve cooperation. This in the Western Australian Government ‘State research is described in greater detail in the Emergency Preparedness Report’ which complimentary report on this topic avaliable on the argues that, ‘effective emergency management SBEnrc website (Project 1.35). relies on a complex synergy between agencies, industry, other levels of government and the community’. The report emphasises that preparedness and recovery after a major weather event is a shared responsibility between local government, business and community.39

• Western Australia’s Department of Fire and Emergency Services (DFES) utilises the purpose-built State Operations Centre (SOC) for state-wide, 24/7 monitoring, control and coordination of disaster events throughout Western Australia. Following the introduction of the centre during the 2012-13 cyclone and bushfire season, multi-agency organisation, information transfer, technology, and support has been greatly improved, as was evidenced during events such as Tropical Cyclone Rusty in the North West and multiple bushfires

18 SBEnrc Industry Report | TRANSPORT NETWORK RESILIENCE References 1. Brown, V. (2008) A Collective Social Learning Pattern, 17. ibid. Proceedings of the 13th European Conference on 18. Carroll, F. (2015) Building it back better to reduce Pattern Languages of Programs (EuroPLoP 2008), risks after multiple disaster events, Queensland Klosters Irsee, Bavaria, July 9-13, 2008. Reconstruction Authority, Queensland, presented 2. COAG (2011) National Strategy for Disaster Resilience: to the Floodplain Management Association National Building our nation’s resilience to disasters, Council of Conference. Australian Governments. 19. COAG (2011) (See 2 above) 3. ibid. 20. NSW Government (2015) New sealed road in 4. Queensland Government (2015) Queensland State Shannons Creek provides airstrip to help save lives, Disaster Management Plan, The State of Queensland Media Release, Duncan Gay, Minister for Roads, (Queensland Police Service), Reviewed 2015. Maritime and Freight, NSW Government. 5. Queensland Government (2011) Rebuilding a 21. QLD Government (2003) Queensland Resupply stronger, more resilient Queensland, Queensland Guidelines, Disaster Management Act 2003, Reconstruction Authority. Emergency Management Queensland, Queensland Government. 6. WA Government (2012a) Emergency Preparedness Report 2012, State Emergency Management 22. Queensland Government (2011) (See 16 above). Committee, Western Australia. 23. Commonwealth of Australia (2010) Critical 7. WA Government (2015) The Principal’s Guide to Infrastructure Resilience Strategy, Australian Bushfire, Department of Education, Western Australia. Government. 8. Webber, D., and Rae, E. (2015) Reliance towards 24. Queensland Government (2015) (See 4 above). resilience – a paradigm shift to involve community in 25. Queensland Government (2011) (See 16) above. the planning process, NSW State Emergency Service, 26. National Science Foundation, Awards Program. Wollongong, NSW, presented at the Floodplain Management Australia Conference. 27. Commonwealth of Australia (2013) The Australian Public Service Big Data Strategy, Improved 9. ibid. understanding through enhanced data-analytics 10. Deloitte (2013) Building our nation’s resilience to capability, Australian Government Information natural disasters, commissioned by the Australian Management Office, Australian Government. Business Roundtable for Disaster Resilience and Safer 28. Wilson, C. (2014) Drone Research Could Help Disaster Communities, Deloitte. Response Efforts, ABC News. 11. Commonwealth of Australia (2012) Naturel Disaster 29. WA Government (2012a) (See 6 above). Relief and Recovery Arrangements, Attorney-General’s Department, Australian Government, Determination 30. Wells, K. (2015) Natural Disasters in Australia, Version 1. Australian Government. 12. Commonwealth of Australia (2002) Benefits of Flood 31. Clarke, T. (2013) New tech weapon to help fight Mitigation in Australia, Report No. 106, Bureau of natural disasters, The Sydney Morning Herald, March Transport and Regional Economics, Department 15, 2015. of Transport and Regional Services, Australian 32. WA Government (2012a) (See 6 above). Government, Canberra. 33. COAG (2011) (See 2 above) 13. Deloitte (2014) Building an open platform for natural 34. Queensland Government (2015) (See 4) above disaster resilience decisions, commissioned by the Australian Business Roundtable for Disaster Resilience 35. WA Government (2012a) (See 6 above) and Safer Communities, Deloitte. 36. Commonwealth of Australia (2010) (See 23 above) 14. WA Government (2012b) Adapting to our changing 37. ibid. climate, Western Australian Government. 38. COAG (2011) (See 2 above) 15. City of Greater Geelong (2014) Municipal Emergency 39. WA Government (2012a) (See 6 above). Management Plan, City of Greater Geelong. 40. Queensland Government (2015) (See 24 above) 16. Queensland Government (2011) Rebuilding a stronger, more resilient Queensland, Queensland Reconstruction Authority.

TRANSPORT NETWORK RESILIENCE | SBEnrc Industry Report 19 SBEnrc Overview The Sustainable Built Environment National competitive advantages; market premiums Research Centre (SBEnrc) is the successor to through engagement in the collaborative research Australia’s CRC for Construction Innovation. and development process; and early adoption of Established on 1 January 2010, the SBEnrc Centre outputs. The Centre integrates research is a key research broker between industry, across the environmental, social and economic government and research organisations for the sustainability areas in programs respectively built environment industry. titled Greening the Built Environment; People, Processes and Procurement; Productivity through The SBEnrc is continuing to build an enduring Innovation. value-adding national research and development centre in sustainable infrastructure and building Among the SBEnrc’s objectives is to with significant support from public and private collaborate across organisational, state and partners around Australia and internationally. national boundaries to develop a strong and enduring network of built environment research Benefits from SBEnrc activities are realised stakeholders and to build value-adding through national, industry and firm-level collaborative industry research teams. For further information: Professor Keith Hampson (CEO) Professor Peter Newman (Program Leader) Sustainable Built Environment Professor of Sustainability, Curtin University National Research Centre Curtin University Sustainability Policy [email protected] (CUSP) Institute [email protected]

Professor Peter Tatham (Co-Project Leader) Professor of Humanitarian Logistics, Griffith University [email protected]

Dr Charlie Hargroves (Co-Project Leader) Senior Research Fellow, Curtin University Curtin University Sustainability Policy (CUSP) Institute [email protected]